The Role of National Youth-Serving Organizations in
Out-of-School-Time Programming for Older and Harder-to-Serve Youth

A Forum — January 14, 2005

Background

This roundtable discussion is part of a five-part series sponsored by the Charles Stewart Mott Foundation on issues in out-of-school time (OST) programming. Earlier forums dealt with what the evidence says about the effectiveness of OST programs, about the development of statewide after-school networks to improve quality and accessibility of OST programs, and how OST programs support academic achievement outcomes for students. This roundtable features efforts of large, voluntary youth-serving organizations—Boys & Girls Clubs, Girls Scouts of the USA, 4-H, Camp Fire, and YMCA of the USA—to serve older, harder-to-serve teens through constructive, out-of-school time activities.

This is a topic that many feel needs greater exposure especially in light of concerns that:

1. Out-of-school-time program opportunities become more limited as teens age.
2. Many teens are not motivated to participate in out-of-school time activities.
3. Out-of-school time opportunities are even more scarce for low-income and minority youth.

We know that programs for older youth must be different from those for children and adolescents and that there is ample experience from practice and knowledge from the literature to tell us what effective programming for these young people should look like.
In the more effective programs documented by Hall, Israel and Shortt (2004):

• Youth feel a sense of independence as part of participation in the program, particularly financial independence through earning wages or a stipend.
• Their voices are listened to and incorporated in decision-making.
• Offerings include development of employable skills and preparation for or direct connection to job training and employment.
• Youth have an opportunity to interact with community and business leaders.
• Schools and principals are active partners
• Assistance in navigating the post high-school experience is provided.
• Youth are introduced to the world outside their local neighborhood.

Experiences of Large Youth-Serving Organizations

Because there is much to be shared with the newer burgeoning after-school movement, AYPF turned to representatives of large traditional and voluntary youth-serving organizations to tap their experience in serving older/harder-to-serve teens. The session began with an overview by Carla Herrera, Senior Policy Researcher, Public/Private Ventures, of the findings from an evaluation of a three-year initiative to provide and enhance Boys & Girls Clubs services to underserved teens.

Boys & Girls Clubs of America is the nation's fastest-growing youth development organization with a primary focus on young people from disadvantaged backgrounds. Over 4 million children and youth participate in 3400 club locations in 50 states, Puerto Rico and the Virgin Islands. These clubs are: sited in neighborhood-based buildings designed solely for youth programs and activities; open every day, after school and on weekends; have full-time, trained youth development professionals; provide positive role models, mentors and volunteers with key supplementary support; and are affordable for neighborhood youth with dues averaging $5 to $10 per year.

Herrera described the initiative to expand service to underserved teens launched in three of the eight clubhouses of the Madison Square Boys & Girls Club in New York City, and all five clubhouses of the Boys & Girls Clubs of Boston. According to Herrera, the Boston clubhouses had had great success with 6-9 year olds, but had never tried aggressively to recruit youth transitioning into the teen years and older teens. New York already had a successful teen program, but wanted to include more teens, those who might not have viewed the clubs as places for them without outreach, especially at-risk youth.

Strategies clubs used to achieve their goals impacted staffing as well as variety, time, quality and intensity of programming. Strategies included:

• Hiring new dedicated staff to focus on teen needs. New York clubs hired a guidance specialist to provide case management for involved teens, a job specialist, an outreach specialist and a project coordinator. The Boston clubs hired a teen advocate for recruitment and a teen education advocate to provide academic assistance and tracking for teens.
• Increasing staff time for recruitment.
• Providing tracking and case management.
• Increasing teen access to (and within) the clubs (e.g., by extending hours, allowing teen access to gyms, swimming pools, etc.).
• Developing community collaborations (such as with probation officers in New York and the Police Department and Division of Youth Services in Boston to help with outreach).
• Offering a variety of activities, including leadership opportunities (such as leading a sports team, tutoring, helping set rules and participating in community service), academics (tutoring and homework help) and job-related training, including offering stipends which were important motivators for higher-risk youth.

Although the clubs in each city experienced success in meeting their goals, this success was not without challenges. Serving and retaining older and higher-risk youth proved difficult and forced changes within the organizations. Youth indicated barriers to more frequent participation included: (1) a lack of engaging activities; (2) too many rules; and (3) problems with the adult staff.

The New York clubs had to refine their outreach strategies to focus on teens who would most likely benefit from regular participation. Oftentimes, creating programming that youth found interesting was difficult for staff. Challenges related to finding staff with the right skills, providing adequate training and minimizing turnover. Clubs that recruited well beyond their goals found it important to balance quantity with quality as the higher numbers, without the concomitant capacity, resulted in lower available peer and adult support. As programs expanded, strategies were required to deal with increasing space needs, provision for appropriate staff, and other specific programming needs. Due to their different focuses, the initiatives represented different costs. In Boston, the cost was $499 per youth per year (essentially an expansion of their core program), whereas NYC costs representing a more intensive effort involving outreach and case management were $2178 per youth per year.

Following this presentation, invited representatives from the large youth-serving organizations provided background on their organizations, staffing, and strategies to serve teens.

Girls Scouts of America

According to Harriet S. Mosatche, Senior Director, Research and Program, Girls Scouts of the USA, there are nearly four million Girl Scouts, of which almost 3 million are girl members ages 5-17 and about 950,000 are adult members working primarily as volunteers. The largest group of girl members is between the ages of 6 and 8. The organization’s experience is that at the age of 10 or 11, girls begin to drop out of Girl Scouts. Assuming that it is easier to retain old members than to recruit new ones and hoping to reach a wider segment of preteen and teenage girls, the Girl Scout Research Institute (GSRI) conducted a study of thousands of girls (in and out of Girls Scouts) to better understand how to meet their needs. The sample was representative of girls in a range of ethnic and socioeconomic statuses. The study also included families, staff, and volunteers nationwide.

The findings, reported in Ten Emerging Truths: New Directions for Girls 11-17 (Schoenberg et al, 2002), indicated that girls want to be part of a group that they create; participate in activities they choose; talk about topics that interest them; and be advised by a variety of adults to whom they relate. According to Mosatche, “the teens wanted some volunteers who were closer to their ages (e.g., college students, young professionals), so that they could relate to them better.” Mosatche added that most volunteers are parents of Girl Scouts, and the organization depends on volunteers for most positions, especially troop leaders. The teens were clear that they wanted their own programming, not an expanded version of what was available for younger girls and did not want to be associated publicly with the same organization linked with programming for younger girls. The findings suggest that adolescents (11 to 17 year-olds) need to be divided into groups—11 to 12 year-olds, 13 to 15 year-olds, 16 to 17 year-olds—which more closely reflect their interests and development.

As a result, Girl Scouts of the USA created STUDIO 2B, a new program for teens where they can become their future best; belong to a group to have fun, relate to others and form friendships; develop ideas and voice what is important to them; and take action on issues about which they care. STUDIO 2B includes the tools and resources to make this happen, including having adults serve in advisory capacities, producing materials to help them plan, connect and implement activities; and providing an online site designed for teens (www.studio2b.org) where girls can submit stories, read articles and get advice and information on topics important to them. The impetus behind all activities is that they are initiated by girls, for girls and must appeal to girls.

Eric Killian, Associate Professor/Area Extension Specialist, University of Nevada at Reno Cooperative Extension described 4-H, its background and relationship to the Cooperative Extension Service. The originating concept behind 4-H’s practical and its focus on “hands-on” learning came from efforts a century ago to make public school education more connected to country life. At that time, researchers at experiment stations of the land-grant college system and U.S. Department of Agriculture (USDA) felt that youth could be a conduit for introducing new agricultural technology to adults in the farming community. When Congress created the Cooperative Extension Service at USDA in 1914, it included boys' and girls' club work. This soon became known as 4-H clubs—Head, Heart, Hands, and Health.

4-H represents a federal, state and county partnership with local leadership and autonomy. There are approximately 3,000 county offices with 4-H clubs nationwide and two national offices—at the USDA and in Chevy Chase, MD, home of the National 4-H Council, the national, private sector non-profit partner of 4-H and the Cooperative Extension System. The National 4-H Council manages a full-service conference facility and in partnership with 4-H at all levels—national, state and local—provides training and support, curriculum development, fosters innovative programming, and facilitates connections within the 4-H partnership.

Currently, 4-H is the largest out-of-school youth program in the U.S., with over 7 million members (from 8 – 19 years of age) and 500,000 teen and adult volunteers. Its goal is to provide formal and non-formal community-focused experiential learning to: develop skills that benefit youth throughout life; foster leadership and volunteerism in youth and adults; build internal and external partnerships for programming and funding; strengthen families and communities; and use research-based knowledge and the land grant university system.

A national effort, 4-H Afterschool, is underway to increase 4-H's capacity to develop and implement after-school programs and to work with other youth-serving organizations to increase the quality and quantity of after-school programs. The goal is to increase young people's opportunities to have fun while developing lifelong skills through experiential learning in safe, healthy, and enriching environments. 4-H Afterschool brings together diverse 4-H "learn-by-doing" experiences in the after-school timeframe to improve the quality of after-school programs and further the development of social, emotional, physical, and academic skills among young people. 4-H Afterschool enables organizations to: establish 4-H clubs at after-school sites; implement innovative "learn-by-doing" curricula for youth; and disseminate youth development expertise, staff training and resource materials.

Andy Millikan, National Director for National Teen Programs and Service Learning, Camp Fire USA explained the mission of the organization founded in 1910: to build “caring, confident youth and future leaders.” Every Camp Fire USA program contains the following essential elements derived from this mission which must: (1) be youth-centered; (2) engage the entire family in fun and outcome-rich activities; (3) be welcoming and inclusive; (4) build youth and adult partnerships; and (5) provide service to others. Millikan explained that parents of Camp Fire youth members are also active members; they are encouraged to join their children in activities and to volunteer to help the organization.

In 1999, Camp Fire USA arranged a weeklong gathering of teenagers in order to figure out why other teens dropped out and what they wanted from the organization. Among the priorities that teens voiced were opportunities for community service, leadership and improving their communication skills. In response, Camp Fire USA developed two programs for older youth: the Discovery program for middle school students and Teens in Action for high school students. Both programs have activities that are tied to national education standards and specific outcomes.

The Discovery program offers an opportunity for sixth, seventh and eighth grade students to discover new information about themselves and others. A key component is the emphasis on youth participation in decision making and leadership. As youth grow and develop, their roles in decision making and governance increase. The young people are offered choices of activities, rather than provided a set of specific activities. Focus is on meaningful leadership development through practical experience in assuming leadership roles, not “just make work” activities. Assessment of individual youth skills, interests and needs is also a critical component of all Camp Fire USA programs. In addition to leadership development, the Discovery program provides a structure and process for skill development, creating an increased understanding of self, family, other relationships, community, the environment, creative expression, leisure activities, and the future in a world of technology and business growth.

The Teens in Action program focuses on developing youth-adult partnerships and learning through empowering experiences. Its intent is to build strong ties between teens and their families, schools and communities, and to put a spotlight on issues of concern to youth and how they can make a difference in the world. In Teens in Action, young people have fun, relax with their friends, work with caring adults, and, at the same time, stand up for something they believe in. They exchange ideas, discuss issues, determine community needs, develop strategies to address them and participate in decisions that govern Camp Fire USA both at the local and national level. Teens in Action groups research and select service-learning challenges they wish to tackle. Individuals are also encouraged to identify personal quests and create their own action plans for mastering them.

Sharon Williams, Specialty Consultant for Teens, YMCA of the USA provided an overview of the YMCA’s efforts to improve programming for teens. According to Williams, there are approximately 2600 YMCA facilities nationwide, representing the largest number of not-for-profit community service organizations working to meet the health and social service needs of 18.9 million men, women and children in 10,000 communities in the United States. YMCAs are membership organizations (youth pay minimal membership fees), though funding for programs comes from diverse private sources. In 2004, these facilities served 2.4 million teens between the ages of 11 and 18. Most of these were older teens. According to Williams, the Y’s experience is that it has been hardest to serve teens in the middle years.

At a time of evolving pressures and challenges facing teens, YMCA of the USA has issued a call-to-arms to YMCAs across the U.S. to implement a Teen Action Agenda. The national organization seeks to become known as the premier organization for teens, serving one out of five teens by the close of 2005. The Teen Action Agenda asks YMCAs to commit to: offer at least one program in each of the three program agenda elements (leadership and service-learning; education, career and life skills; and health, safety and well-being); dedicate one full-time (or equivalent) staff person for every 1,000 teens served; and issue a membership card to every teen served. Additionally, Ys are asked to commit to evaluation-related requirements: setting guidelines and objectives for teen programs and measuring their impact; using a management information system to count and report on the number of teens served; using a YMCA of the USA self-assessment survey and annually reporting results; doubling the number of teens served; and pledging support for the national movement’s goals of serving one in five teens by the year 2005.

Williams described other programs focused on teen leadership and service. In cooperation with the Corporation for National Service, teens receive training in community mapping and creating a website where members of the community can voice their concerns. Based on this information, teens address these concerns through service projects. The goal is to have teens take control of the activities they choose to do in the YMCA programs.

Challenges and Opportunities

Following the general presentations, panelists discussed challenges their organizations face in engaging teenagers in their programs and ensuring that they are youth-centered and youth-driven as well as the opportunities these challenges have provided.

1. Knowledgeable and appropriate staff and volunteers.

Girl Scouts, Camp Fire and 4-H are greatly dependent on volunteers. Millikan (Campfire) and Killian (4-H) indicated that preparing volunteers to work with autonomous teen groups, especially when many of the volunteers are parents of the teens involved, can be challenging. “Parents are often reluctant to hand over their authority and influence to the teens,” said Millikan. According to Killian, the challenge continues to be how to make programs more teen-friendly by relinquishing leadership to teen control. He indicated that the 4-H curriculum is very teen friendly, the problem is often with adult leaders who do not understand teen-centered programming. Williams characterized the challenge at YMCAs as between the older guard and new guard staffers—the latter tend to be supportive of letting the young people take a more central role in the planning and leadership of the program.

Studies by the Girl Scout Research Institute (GSRI) reveal that almost one-quarter of teens have fewer than three adults they can go to if they are in trouble or need help. (It is estimated that there are 14 million girls ages 11-17 in the U.S.) That is why, Mosatche (Girl Scouts) stressed, it is important to expand access for teens to knowledgeable and caring adults. Yet, according to Mosatche, teens do not want adults in youth programs to act as gatekeepers. They want their programs to be girl-centric and the adults involved in them to be advisors or guides. One of the greatest challenges for the Girl Scouts is getting volunteers who are closer in age to the teens so that they can better relate and have points of affinity. She stressed that the label you put on the adult and their role is important to the message of encouraging adolescent members to lead themselves.

To address these challenges, all Girl Scouts volunteers receive training; however, currently there is no national standard for training. This is an area on which Girls Scouts of the USA seeks to improve, said Mostache. At Campfire USA, 4-H and YMCA, all paid staff and volunteers receive training and submit to background checks.

2. Establishing relationships with families and community institutions.

In contrast to the challenges described above related to volunteers as family members, Williams (YMCA) described the challenge of encouraging parents to be more actively involved in the lives of their teenagers, providing guidance and direction in their lives. Camp Fire USA has the Community Family Club, a set of programs that helps parents strengthen the bonds with their children. Some YMCAs arrange family camping trips and other activities to bring families together in positive experiences where the young people can exhibit their own skills and leadership. Not only do these activities provide exposure for the young people but create opportunities for parents to see their children in different contexts, exhibiting different sets of skills.

With help from the National Science Foundation, the Girl Scouts has established partnerships with troops and their local science museums. Field trips are organized to science museums and each girl brings a family member. The goal is to help girls gain more interest and confidence in science and other academic subjects while helping the family member to view science as an appropriate area for study and success for their child.

Williams noted that YMCAs in some cities, such as New York City and Seattle, have established links between parents, young people and their schools, functioning as advocates for youth with their schools and working with parents and families to be more assertive in dealing with schools.

3. Developing appropriate materials that appeal to teens.

According to Mosatche, getting teen attention and participation requires market research and an effort to conform to the message and medium teens find engaging. Teens want their magazines, catalogs and other materials to be different from those for younger girls; they want to discuss matters that directly concern them. Girl Scouts of America has worked hard to make Studio 2B brochures teen-friendly, resembling female teen magazines, while addressing issues of concern to older teens. A “magalog” (combination magazine and catalogue) has also been created. While this was very well-received, Mostache stressed that this is an expensive process.

4. Transportation and facilities.

4-H does not have afterschool club facilities and runs many of their programs through the schools and with other youth serving collaborators at the local community level in the out-of-school time. Many Girl Scout troops also meet in schools. Most YMCA facilities are in suburban or rural areas. Often, the YMCA does not have the ability to transport youth to their facilities. As a result, YMCA often partners with places of worship and community centers to take programs into the community.

Value Added Opportunities

Despite these challenges, these organizations provide complementary supports or substitutes for curricula that schools can no longer offer. In so doing, they expand opportunities for young people to grow and develop. Examples cited include: Girl Scout leaders that teach science during the school day; 4-H entrepreneurship programs in schools; Campfire USA home economics courses; and YMCA’s provision of music and physical education classes in schools. In New York State, the YMCA’s Youth and Government program is offered and accepted as a one credit high school course by some public schools. Increasingly OST curricula are developed to support state standards (e.g., 4-H; Girls Scouts).

Policy Implications

In the final round of discussion, panelists shared the funding, capacity and policy implications of their work.

According to Herrera, voluntary youth-serving organizations are good investments for serving teens because they typically have existing experience, infrastructure, administrative support and teen-oriented program staff. Efforts to serve teens may be more easily sustainable if these efforts become part of the organization’s core program.

The panelists agreed that the field as a whole needs to provide stronger programs for older teens. One panelist suggested that the current focus on serving younger children in the out-of-school time is important, yet a focus on teens is critical because they are our more immediate workforce and increased efforts should be placed on assisting them to contribute to society now. Among needs of the field are for more support and training for volunteers as well as better research on operations and services of youth-serving organizations so that they can do their jobs better. Killian (4-H) indicated that many organizations are trying to reach the same audience of youth and are in competition for scarce funds. He said that it would be nice to set up collaborative approaches for serving older youth where organizations work together utilizing each other’s strengths. The panelists agreed that the field as a whole needs to provide stronger programs for older teens, and there needs to be a better way for youth-serving organizations to work together so that successful programs can be replicated.

Resources

Duffet, A. & Johnson, J. (2004) All Work and No Play? Listening to What KIDS and PARENTS Really Want from Out-of-School Time. A Report from Public Agenda.

Fight Crime: Invest in Kids. (2004) California’s Next After-School Challenge: Keeping High School Teens Off the Street and On the Right Track. Washington, DC.

4-H AfterSchool web site, www.4hafterschool.org.
4-H History, http://www.national4-hheadquarters.gov/about/4h_history.htm. (Retrieved 2/16/05)

Hall, G., Israel, L. & Shortt, J. (2004) It’s About time: A Look at Out-of-school Time for Urban Teens. Wellesley, MA: National Institute on Out-of-School Time.

Herrera, C. & Arbreton, A. J. A. (2003) Increasing Opportunities for Older Youth in After-School Programs. Philadelphia: Public/Private Ventures

Schoenberg, J., Doyle, E., Bynum, R., Mosatche, H., Conn, M., Pryor, D. (2002) The Ten Emerging Truths: New Directions for Girls 11-17. New York, NY: Girl Scouts of the USA.

Wroblewski, C. (ed.) (ND) YMCA Teen Action Agenda: The first 12 months. YMCA of the USA.

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